BILL ANALYSIS Ó AB 515 Page 1 ASSEMBLY THIRD READING AB 515 (Eggman) As Amended May 4, 2015 Majority vote ------------------------------------------------------------------- |Committee |Votes |Ayes |Noes | | | | | | | | | | | |----------------+------+----------------------+--------------------| |Revenue & |9-0 |Ting, Brough, | | |Taxation | |Dababneh, Gipson, | | | | |Roger Hernández, | | | | |Mullin, Patterson, | | | | |Quirk, Wagner | | | | | | | |----------------+------+----------------------+--------------------| |Appropriations |17-0 |Gomez, Bigelow, | | | | |Bonta, Calderon, | | | | |Chang, Daly, Eggman, | | | | |Gallagher, | | | | | | | | | | | | | | |Eduardo Garcia, | | | | |Gordon, Holden, | | | | |Jones, Quirk, Rendon, | | | | |Wagner, Weber, Wood | | | | | | | | | | | | ------------------------------------------------------------------- AB 515 Page 2 SUMMARY: Expands the existing tax credit program under the Personal Income Tax (PIT) Law and Corporation Tax (CT) Law for contributions of qualified donation items to a food bank and extends the program until January 1, 2021. Specifically, this bill: 1)Revises the definition of a "qualified taxpayer" (QT) to include persons responsible for growing or raising a qualified donation item, or harvesting, packing, or processing a qualified donation item. 2)Revises the definition of "qualified donation item" (QDI) to include, in addition to fresh fruits and vegetables, the following raw agricultural products or processed foods, as specified: a) "Fruit, nuts or vegetables" as defined in Food and Agricultural Code (F&AC) Section 42510; b) "Meat food product" as defined in F&AC Section 18665; c) "Poultry" as defined in F&AC Section 18675; d) "Eggs" as defined in F&AC Section 75027; e) "Fish" as defined in F&AC Section 58609; and, f) Any cheese, milk, yogurt, butter, and dehydrated milk meeting the requirements in F&AC Division 15. AB 515 Page 3 g) All of the following food items as defined in Health and Safety Code Section 109935: i) "Rice"; ii) "Beans"; iii) "Fruit, nuts, and vegetables in canned, frozen, dried, dehydrated, and 100% juice forms"; iv) "Vegetable oil and olive oil"; v) "Soup, pasta sauce, and salsa"; vi) "Infant formula"; vii) "Bread and pasta"; and, viii) "Canned meats and canned seafood." 3)Increases the existing tax credit rate from 10% to 15% and specifies that the credit value is calculated, with reference to the qualified value (QV) of the QDI, instead of inventory costs. 4)Defines a "qualified value" as either of the following: a) The weighted average wholesale sale price based on the AB 515 Page 4 QT's total wholesale sales of the donated item sold within the calendar month of the QTs donation; or, b) If no wholesale sales of the donated item have occurred in the calendar month of the QT's donation, the QV shall be equal to the nearest regional wholesale market price for the calendar month of the donation based upon the same grade products as published by the United States Department of Agriculture's Agricultural Marketing Service, or its successor. 5)Requires donors to provide item value and information regarding where the donation items were grown or processed to food banks and requires the food banks to issue certificates with respect to donated items. 6)Authorizes the Franchise Tax Board (FTB) to request copies of any certificates. 7)Requires the FTB to include in its annual report the estimated value of the QDIs, the origin of the QDIs, and the month the donations were made. 8)Renames, on or after January 1, 2016, the State Emergency Food Assistance Program (SEFAP) as the CalFood Program (CFP). 9)Requires the CFP to provide food and funding for the provision of emergency food to food banks established pursuant to the federal Emergency Food Assistance Program. 10) Specifies that all monies received by the CFA, upon appropriation by the Legislature, must be allocated to the State AB 515 Page 5 Department of Social Services (SDSS) for allocation to the CFP. 11) Repeals the tax credit program on December 1, 2021. FISCAL EFFECT: According to the Assembly Appropriations Committee: 1)Potentially significant General Fund (GF) costs to FTB to administer changes to systems and procedures; no change to DSS costs, which are reimbursed with federal funds received under the program. 2)Estimated GF revenue decreases of $0.4 million, $1.0 million, and $1.4 million in FY 2015-16, FY 2016-17, and FY 2017-18, respectively. COMMENTS: 1)Author's Statement: The author has provided the following statement in support of this bill: California is the leader agricultural producer in the U.S., yet many Californians still suffer from hunger and poor nutrition. AB 515 will broaden the existing state tax credit offered to agricultural producers for donations to qualified California non-profits, such as food banks. It expands the list of eligible products to include other fresh items and a limited set of core shelf-stable items. It also moves the tax credit to 20% of the donation items wholesale value, and extends the sunset of this program to 2021. AB 515 Page 6 2)Existing Tax Credit Program. Under PIT and the CT laws, a qualified taxpayer is allowed a tax credit, in an amount equal to 10% of the inventory costs of the fresh fruits or fresh vegetables donated to food banks located in California. (AB 152 (Fuentes), Chapter 503, Statutes of 2011.) According to the Capital Area Food Bank's (CAFB) Web site, California is ranked 19th for food insecurity nationwide, with a food insecurity rate of 16.2%, which translates into 6.1 million Californians with, on average, one-in-six people in California not knowing where their next meal will come from. All the more troubling is that the child food insecurity rate is 26.3%, meaning 2.4 million, or more than one-in-four children, in California may go to bed hungry each night. CAFB represents 42 food banks throughout California that provide food to soup kitchens and food pantries in schools, churches, and community and senior centers. CAFB partners with over 100 California growers and packers and distributed 140 million pounds of food to people in need. The Scope of this Bill. This bill broadens the scope of what would be considered a qualified donation item and redefines the computation of the credit amount. This bill also increases the rate of the credit from 10% to 15% and expands the definition of a qualified taxpayer. The proposed expanded scope of the program would theoretically increase donations simply by widening the available pool of both participants and products, even without the higher credit rate. In some cases, a qualified taxpayer may be more inclined to contribute a QDI simply because he/she is not able to make a profit by selling his/her products. In those instances, receiving the current 10% credit would be enough of an incentive. Receiving a larger credit may go beyond what is needed to encourage the desired result. 3)Tax Expenditure vs. Direct Expenditure. Existing law provides AB 515 Page 7 various credits, deductions, exclusions, and exemptions for particular taxpayer groups. In the late 1960s, United States Treasury officials began arguing that these features of the tax law should be referred to as "expenditures" since they are generally enacted to accomplish some governmental purpose and there is a determinable cost associated with each (in the form of foregone revenues). As the Department of Finance notes in its annual Tax Expenditure Report, there are several key differences between tax expenditures and direct expenditures. First, tax expenditures are reviewed less frequently than direct expenditures once they are put in place. Second, there is generally no control over the amount of revenue losses associated with any given tax expenditure. Finally, absent a sunset date, a two-thirds vote is required to rescind an existing tax expenditure once enacted. Tax credits are generally used to encourage socially beneficial behavior, to provide relief to taxpayers who incur specified expenses, or to influence behavior (including business practices). In contrast to the value of a deduction to a taxpayer, the value of a tax credit is the same, regardless of the tax rate. Thus, a tax credit is generally more appealing to taxpayers. Furthermore, charitable deductions allowed to corporate taxpayers are limited to 10% of the taxpayer's net income and thus a tax credit for the same donations will be more valuable to a corporate taxpayer. 4)Qualified Taxpayers Outside California. This bill provides that a credit equal to 15% will be given to qualified taxpayers that donate qualified items to food banks in California. Qualified taxpayers located in as well as outside of California are able to claim the credit as long as they meet the applicable requirements and donate qualified items. It is unclear whether the benefits of potentially increasing AB 515 Page 8 the amount of donated food outweighs the costs of subsidizing producers located, and economic activities performed, outside of California. Analysis Prepared by: Oksana Jaffe / REV. & TAX. / (916) 319-2098 FN: 0000636